To understand how messages are constructed and received we adopt the internalization-distribution-explanation-action (IDEA) model of strategic communication during crisis as the theoretical framework to guide data collection and analysis. The IDEA model posits that effective crisis messages contain information that helps the intended audience understand the threat (explanation), the relevance and risk of exposure to the threat (internalization), and what individuals can do to reduce their risk (action). The channels of communication through which the messages are transmitted and received must also be trustworthy and timely (distribution). In our study, therefore, we hypothesize that advanced flood information messages that incorporate all aspects of the IDEA model effectively will be understood and trusted more and, thus, shared more readily. We further hypothesize that the dynamics of flood warning information sharing within community organizations depend on the organization’s level of responsibility for emergency planning, preparedness, and response.
We conducted 15 focus groups and 16 interviews in six communities in the eastern US: Rutland, VT; Williamstown & North Adams, MA; Harrisburg, PA; Fayetteville, NC; Columbia, SC; and Dallas & Fort Worth, TX. Several criteria were used in selecting the community cohort including the type of flood dynamics including a requirement that flooding was riverine and not coastal in nature; the community’s social vulnerability index (SVI) score; and, whether the community had access to existing or past flood mapping services. Additionally, the communities selected each had experienced flooding in the last 10 years and ranged in size from small towns and cities the Northeast to the fourth largest metropolitan area in the country in Texas. Focus group members in each community (N = 61) represented three target flood warning audience segments including local authorities (N = 24) with responsibility in, for example, public transportation and public works; health and human services providers (N = 18) who worked for organizations including shelters and hospitals; and, community interest organization leaders (N = 19) who worked for or represented organizations including large employers and faith-based organizations. To arrive at intercoder reliability, three transcripts were coded by two project members who met and discussed major discrepancies. A fourth and final transcript was coded by both team members and acceptable levels of intercoder reliability were reached (k = 0.76). After intercoder reliability was reached, the two team members split up and each coded 3 of the remaining 6 transcripts.
Results will be shared for each audience segment and across each IDEA model dimension. On distribution (D), preliminary results for the local authority audience segment indicate that the most common distribution channel is email which was mentioned in all focus group transcripts, followed by calls and apps, each missing from one group. All groups reported receiving flood warning information from the National Weather Service (NWS) and emergency managers. Participants reported that they wanted consistency across multiple sources before they would share information with audiences. In most cases consistency was reported to exist, particularly across NWS messaging, however guidance and collaboration were needed when inconsistencies did exist. Gaps in information or limitations on model resolution or accuracy are also not always clear, which local authorities reported as a limitation on the explanation (E) efficacy of flood warning messages. Participants reported that these barriers, in addition to a lack of localized specific information may lead to unnecessary action (A). When resharing information within their communities, local authorities reported reposting NWS messaging on their organizational website or by calling relevant partners (D). They sometimes sought to enhance internalization (I) for their audience by adding graphics for attention. While local authorities reporting feeling well-versed at adjusting for too-distant forecasts on their own, they noted that the timing of information, particularly if messages were shared too early before a flood event, was a potential barrier affecting their community member’s ability to internalize (I) the relevance of messages. They additionally reported modifying the explanation (E) of the message by tailoring or translating it for their community including focusing on who, when, how much, and where impacts were forecast to occur. Their messages also seemed to include broad actions steps (A) encouraging their communities to be prepared for expected flood conditions. Ultimately, local authorities reported that simple and specific messages were most effective. These results support the IDEA model framework by demonstrating the importance of disseminating timely messages that provide clear explanations and action-steps along appropriate channels. These preliminary findings also support part of our hypothesis that advanced flood information messages that incorporate all aspects of the IDEA model effectively will be received and shared more readily.
Additional results for the health and human services audience segment and the community interest organization leaders audience segment will also be shared. A national survey is ongoing to validate the qualitative findings of this study. Results of this study will be used to inform recommendations to NOAA for possible actions to improve operational efficacy of flood warning information sharing in support of their research to operations objective.
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